With thanks to Cliff Jones, DMG Print and Creative Edge in helping to produce this publication. 2009

Cornish Constitutional Convention The The next push

The new Council unitary authority is a step along the way to secure effective, efficient, responsive and forward-looking governance for Cornwall, a peripheral, distinctive and different British region.

www.cornishassembly.eu Cornish Constitutional Convention

INTRODUCTION

As Cornwall wakes up to its new The key opportunity is to bring all unitary authority the opportunities public services together under a single for developing it press harder for administration – to take the unifying attention. principle to the next stage. This pamphlet sets out the Cornish case, and, once The economic climate will require again, suggests that Cornwall holds an creativity, boldness and focus if Cornwall important key for Government in evolving is to navigate the turbulence and emerge and developing modern governance and with a productive and sustainable service delivery for a new century. economy. It will require a strong relationship between public bodies and The pamphlet describes how the new entrepreneurs, and a stronger focus for local government structure may be used Cornwall as it seeks to compete in a to provide a foundation for developing a range of markets, and takes its place in an new form of strategic service leadership array of partnerships – most importantly, that can, within the overarching framework Cornwall knows its own identity, and of statute, regulate and shape policy that wishes that identity to be known and enables the UK to promote unity through understood and to be associated with diversity, and enables Cornwall to evolve positive values. as a vibrant, distinctive and proud part of a renewed and vigorous British Isles, and to be tax-efficient and sustainable.

01 THE CORNISH ASSEMBLY PREFACE THE NEXT PUSH 1. In 2000 Cornwall was dealing with our objectives were because there were the aftermath of the closure of South too many institutions and bodies trying to Crofty tin mine. It was this cathartic define the same thing in different ways! incident that had given rise to the popular demand, led by Cornish Solidarity, for a 4. Cornwall needed to come to terms with root-change in regeneration. The closure being competitive both in economic terms, had caused many people to consider and in relation to national and supra- the issue of identity in relation to brand, national bodies in ensuring that it got a and to consider the extent to which it clear, well-focused message to the right SUMMARY was vital for Cornwall to be clearly seen places at the right times. to be itself - not ‘compromised’ by the ‘arranged marriages’ of region-makers and apologists. It was perceived that THE CENSUS It is not difficult to see, or to achieve future economic prosperity was bound up 1 when the time comes, a set of changes with Cornwall being clear and positive in 5. In 2000 the Cornish were looking which would enable the Assembly to be declaring itself to be Cornish. forward to being recorded as a separately developed without any great change in ‘coded’ ethnic group in the 2001 census. structure. 2. At the heart of the identity discussion This breakthrough had been patiently lay two key issues – achieved through a quiet coalition of local A slimmed Council would become the and parliamentary politicians, supported Assembly, assuming a higher role; the I. the need for clear, collective by officials in the local authorities and Delivery Areas would be democratised self-expression, Office of National Statistics. The flow of to become the delivery-driven local II. the need for such expression to be the national discussion about cultural government of Cornwall, working with the clearly proclaimed by institutions that data, prompted by concerns about Parishes to deliver services. understood the Cornish situation (in implementing policies driven by multi- all its multi-layered complexity) and culturalism, as well as by the outfall from could speak at high tables and low Scottish and Welsh devolution and the without risk of contradiction from within. drive towards a peace settlement in Northern Ireland, offered a moment when 3. In other words, the colourful spectacle the Cornish position could be effectively of too many local authorities falling and logically advocated. over each other to command the strategic heights and to be present at 6. It was seen by those advancing the ministerial and European tables had to be Cornish case that progress depends upon addressed. In Whitehall, Brussels or New understanding the wider political and York, Cornwall only ever has sufficient intellectual environment, and inserting the time to broadcast one clear message at a Cornish ‘question’ positively and cogently time. Making that message, and preparing as a means of helping the wider debate to the way towards stating it, has been often move forwards. This was a sophisticated confused and ill-focused. We have often political insight that has led to some major found it impossible to clarify who we are, achievements over the past decade. what we want, what we would do, what

03 1 That element of the population of the UK that chooses to describe itself as such as a way of defining culture and identity (thereby attuning with the ‘Fraser Judgement on ethnicity HoL: 1983) WORLD HERITAGE SITE ROOTS OF ‘DIFFERENCE’

Tin is ONE key to the understanding of Cornish distinctiveness.’ 7. Amongst these are the World Heritage 9. Understanding and operating at this It’s a bit too categoric as it is and might imply that tin is the most Site, which built a coalition of support both level is quickly becoming part of the reality locally and globally. The UK Government of being a dynamic and successful region. important feature of Cornishness, to the disadvantage of the rest of was content to nominate the Cornish In this ‘market place’ it is essential to be the argument in the document, I think. I (currently) think there are three proposition, and found a willing audience culturally defined, creative and outward- main pillars to Cornish distinctiveness - ethnicity, Celticity, and tin. at the United Nations (which manages the looking, and environmentally engaged. World Heritage programme). It remains Successful regions will be those that are Cornish tin was one of the first metals to be used by man, over 4000 excited by the prospect of bonding a both efficient and business-like, and easily years ago, and is probably Britain’s oldest export. With a multiplicity of number of other sites around the World recognisable. The key recognition factors uses, tin and its alloys, along with wool and lead, made up the bulk of (in Australia, USA and elsewhere) to make will be the drivers for promoting a region’s a unique global site that maps not only brand identity and must, therefore, relate Britain’s exports until the late 17th century. Within Cornwall, a unique technological and industrial development positively to key brand values. This is as economic, legal and social infrastructure arose due to the industry, but also the movement of peoples true in governance terms as it is in the with many aspects emerging in advance of other areas. Extremely that has led to the emergence of the commercial arena. early capitalist systems (for Britain) developed from the 13th century migration-driven super-states (USA, S Africa, Australia). The essence of 10. Cornwall’s new Unitary Authority in Cornwall and evolved into the efficiency of the cost book system the task was to use the talents at our will need to develop objectives, policies, with its ideology that one man could work and expect a share of profit disposal, to develop sufficient goodwill relationships and awareness at the by way of return. Famously, Cornwall’s tin mining industry has been locally to form a ‘partnership’, and to form national, continental and global levels. One a coalition bonded by a mutually beneficial of the most important aspects of the case characterized by advances in technology and engineering, taken objective between Cornwall, the UK for the identification of Cornwall and the throughout the world by emigrating miners. Today, as tin prices rise Government and other agencies, including as a region (in functional as again, South Crofty operates under the slogan ‘Tin is Regeneration’ the EU, council of Europe and UN. well as branding terms) is that it enjoys key attributes of, and is widely recognised and has an expanding workforce of 50 people. 8. This seems like very grand talk! But, as a Region already. Translating assertion the world is increasingly rendered ‘local’ and recognition into administrative and by the power of communication. It is strategic reality will open up opportunities becoming increasingly important to foster to build on Cornish strengths as the cultural diversity as a counter-balance means of contributing positively to THE CORNISH LANGUAGE to potential homogeneity. There are economic progress, environmental emerging common agendas on climate understanding, cultural diversity and social change, regulating global business and cohesion. 11. The objective was clear and the in Cornwall, but is willing to support infrastructures, positively managing health benefits were not simply of cultural value and assist in taking things forward. and poverty, and evolving the post-oil but also financial and psychological. The The invitations to the World’s leading socio-economic shift in an equable and task of building a partnership and of socio-linguists to form a ‘Commission’ peaceful manner. brokering a degree of trust and common to map out the path towards a standard ground was slow and painstaking. We written form of Kernewek were readily now find funds flowing into language accepted by the top flight. Eventually, development. Perhaps the most important we saw the UK Government, the Council aspect of the process which has so far of Europe and international academics been undertaken has been the recognition come together to celebrate and invest in that, if asked, the international community Cornwall and Cornish culture. is not only aware of what is going on 05 OBJECTIVE 1 - KNOWLEDGE & COMMUNICATION

12. The Objective 1 Programme 13. We have also finally developed 16. Each aspect of Cornish evolution than complacency! On the other hand, has secured two major structural the replacement for Glasney College2 contributes to Cornwall’s reputation in achieving big things, it is important to developments that stand us in good stead at Tremough, Penryn. The Combined as a mature and committed place with consider how we achieved them and to for the future. The first is a robust key into Universities in Cornwall project has ambitions set in the context of achieving apply the lessons to how we consolidate the virtual world of broadband. Cornish developed a significant higher education a distinctive economic and environmental and develop, and achieve the sort of organisations and businesses can engage campus at Penryn, in which there is a identity – we now have both the means fundamental changes that will place at a reasonable (though not necessarily strong and growing element of globally of generating Cornish ideas and of Cornwall on a sustainable, evolutionary competitively cosmopolitan!) speed in significant research, especially focusing communicating them effectively into and positive path for the future. debate, transactions, partnerships and on the environment and engineering. the global debates in a wide range of development via the Web. We are where Amongst other things, as the result of disciplines. One area in which this is 18. There also remains a very strong we were during the peak period of the leaving its eponymous home, Camborne proving to be quietly effective is that of sense of being misunderstood. This industrial revolution – in the heart of School of Mines has found a new and human rights. The anomaly of having a affects perceptions ranging from the things, connected, with our ideas capable vigorous lease of life. Cornwall is also People whose heritage and language are geographical assumptions of weather of persuading investment, and investors training doctors and dentists as part of internationally recognised and protected, forecasters to the designers of regions, willing to engage. this exercise and we are supporting the whose identity can be recorded on the the layout of post-code areas, the birth-pangs of the first University of the national census but whose visibility as an assessments of strength and weakness Arts at Falmouth (emerging from the ethnic group in a multi-cultural society which inform most strategic analyses union of University College, Falmouth and remains opaque, to say the least. The and eventually affect the flow of public Dartington College of Arts). most important element of achieving funds, the effectiveness of public policy progress in the human rights field is to fix and central assumptions about equality, an objective and to coalesce a partnership fairness and social modelling. Much of this around achieving it. problem derives from a lack of capacity and commitment to codify and explain the MOVING FORWARD – ‘DIFFERENCE’ 17. Again and again we find that a robust Cornish situation to those who need to partnership formed in Cornwall can win understand it in order to gain best value AND SUCCESS – CHANGING PERCEPTIONS the confidence of major institutions – from their engagements. governments, supra-state and global – to contribute towards progress. This shift in 14. These are major breakthroughs. 15. Truly Cornwall is a positive Region. It perception has been essential to making Again, they are coming about through a needs tailored governance structures to the progress we have made, and should combination of intelligent development enable it to grasp opportunities properly, shape how we approach the future in and consensus building. EU, Government, to build up relationships with its investors terms of resolving the questions around Universities and Agencies (public and and funders, and to fully realise its future governance and human rights. voluntary, together with the private potential. If it is to play a vibrant role in the We tend to achieve significant things sector) all working together to generate UK and Europe as a distinctive, creative and to then talk ourselves into believing development which contributes to and outward looking region, then it needs they are nothing much. In one way, Cornwall’s long-term ability to function the form of governance that will release its constant dissatisfaction with one’s own beyond its physical constraints, to energies. efforts is a good thing – creativity breeds celebrate key aspects of her culture restlessness and restlessness is better that make such achievements possible, 2 A major seat of medieval learning destroyed by Henry VIII and will eventually enable Cornwall to during the Reformation – a period when Cornwall and contribute to resolving global challenges. the State fell out to the point of going to War, and from which the relationship has yet to fully recover. 07 19. The long-term residual influence for Racial Equality (CRE)3 to establish 22. The Cornish case has been much environment, the resulting historical of outmoded and often mischievously case-law recognition of the Cornish, which rehearsed in Parliament and amongst narrative and by what we might term formed perceptions about Cornwall and would engage the protections of the constitutional academics in recent times. ‘economic evolution’ in the industrial and their culture may, Race Relations Act, have been constantly The debate has been stimulated by the and post-industrial eras means that the to some extent, affect the formulation of thwarted without good reasons being attempts in the early 2000s to evolve Cornish case both stands out, and is policies leading to migratory trends that cited for the resistance. democratic regional government. The resilient – a long-term, sustained objective can easily be construed as a subliminally Cornish case has stood out despite the which enjoys consensual support and inspired effort to ‘assimilate’ Cornwall 21. We should not overstate the ebb and flow of that discussion because which is increasingly becoming a very and to iron out the wrinkles of difference issue of Cornish ethnicity, or indeed Cornwall & the Isles of Scilly is a ‘natural’ favourable option for those who seek that motivate demands for specific and of . Neither case region, strongly embedded as such in to creatively and incisively approach tailored treatment. The distinctive historical nor their advocates seek cessation public consciousness, and with economic governance and productivity in the age narrative that has long been suppressed or independence. They seek an and cultural performance to underpin of climate change and post-oil socio- within the supposed status quo has ‘accommodation’ which recognises that perception. This is, of itself, a unique economic adjustment. become more prominent as historians Cornish difference within the overall phenomenon. The strength and depth of have re-focused British historical study structure of the United Kingdom. It is Cornish culture, shaped by the physical to take account of different national and asserted that the UK would benefit from regional perspectives, such as those such an ‘accommodation’ because of Wales, Scotland and, increasingly, the arrangements thus secured would Cornwall. It is simply impossible to explore unshackle Cornish creativity and ingenuity the Cornish story without concluding and supply its outputs and ideas to the WHERE ARE WE? that it has a very distinctive narrative, a UK. The effect of Objective 1, which culture which owes much more to its was a Structural Funds Programme peripherality, connectivity by sea with conceived by Cornwall and the Isles 23. Nobody asked Cornwall if it wished munitions supply, which included the Europe, Africa, Ireland and Wales, and of Scilly, which initiated the notion of to be subsumed into a macro-south enormous and dysfunctional ‘south west’, to fairly new links forged as a result of regeneration by promoting ‘regional west regional zone. It’s a pity that a it would have received some innovative emigrations stimulated by economic distinctiveness’, was to reveal what Government, flushed with electoral ideas which would have created a collapse at the end of the 19th century potential lies beneath the surface of success and reforming zeal, with Wales patchwork of regions, big and small, and a degree of religious persecution Cornwall, wanting only the confidence that and Scotland excited by the prospects of some founded on expediency, some upon against non-Conformists in the same springs from being granted constructive devolution, and with a unique opportunity industrial synergies and one – Cornwall period. semi-autonomy over public strategies, to de-centralise and to invigorate by not and the Isles of Scilly - founded upon services and budgets to flourish and to being jealous of power and control, did an historical, constitutional and cultural 20. This ‘difference’ informs the identity greatly enhance productivity. It is the not take a moment to ask around. If it base and with a rapidly emerging will to of Cornish people and underpins the intense desire to flourish that nurtures had set about regionalisation by asking positively address its growing economic conviction held by many (articulated by a the sustained commitment to seeking an for proposals for a regional network that failure and social deprivation. few) that the Cornish form a British ethnic ‘accommodation’. There is consensus could effectively replace the outworn group, a ‘National Minority’ which has in Cornwall around the concept of the legacy of World War 2 rationing and evolved as a result of the upheavals of Cornish Assembly. It finds expression in Europe. The UK Government is unwilling many forms in mainstream and ‘fringe’ 3 Now subsumed into the Equalities & Human Rights Commission to openly recognise the legitimacy of institutions and bodies, including the main Cornish ethnicity, and, as time passes, political parties in Cornwall, senior officials 4 In 2001 the Cornish Constitutional Convention presented an audited 50,000 signature petition calling on Mr Blair’s and arguments evolve, is becoming and holders of public office, and within a Government to establish the Cornish Assembly. Subsequent opinion surveys showed support rising to 55% in 2004. increasingly isolated in its opinion. significant swathe of the general Cornish Attempts to formalise the position by public4. 11seeking the support of the Commission 24. John Prescott, whose energy 26. Tony Blair picked up the strands of Mr applied to a construct of Cornwall, 30. At this time, there was a very strong lay behind the regionalisation thrust, Major’s careful work in Northern Ireland and West Somerset, failed. The GOSW undercurrent of cultural assertion and of described in his preface to the White and eventually delivered a pragmatic ‘Far West’ Branch would go on to very embarking as a community on the long Paper, Your Region, Your Choice, how settlement to that most convulsive cultural successfully understand the difference path to a special, semi-autonomous regions had emerged, like the Potteries struggle. Mr Major reassured all sides in between Cornwall and Devon, and ‘settlement’ or ‘accommodation’ that in Staffordshire, that were bonded by the Northern Ireland that their perspectives, would administer the Cornwall & Isles of would set a positive and dynamic seal cultural forces of certain industries. These, no matter how eccentric or hard-boiled, Scilly Objective 1 Programme with flair, upon Cornwall’s future. This attractive and he said, were outmoded, and needed would be valued and respected in efficiency and widely acclaimed success. outwardly directed and well-messaged to be replaced by units of a certain size, the search for peace. In doing so, he campaign placed the Cornish case on that could lead regeneration and provide encouraged the UK to sign the Council of 28. In 1996 a report by Dr Judy Payne of the table. Little by little, with successes a framework for social renewal. How Europe’s Framework Convention for the the Plymouth Business School led to the in economic regeneration, higher sad, with hindsight, that Mr Prescott Protection of National Minorities, an action disaggregation for statistical (and therefore education, creativity, heritage designation, did not see that his discard of what he that holds out much potential for all the public spending) purposes of Cornwall human rights and more widespread perceived as being sentiment (but which indigenous minorities of Britain, including from Devon. She detected disparities acknowledgement of the justice of their was actually organic region building) and especially the Cornish. This is work that arising in effective application of policy case, the Cornish community has won its replacement with artificial constructs – transcends the everyday contention and public spending as the result of this respect, converts and friends for its zones - labelled ‘modern’ - was throwing between Parties, so it is natural for leaders centrally enforced ‘marriage’ which were long-term campaign for self-realisation. away a key attribute of any successful of Labour and Tory to pick up the traces intensifying deprivation in Cornwall whilst At last it is becoming possible to lay region – that it means something to of each others’ work. supplying more than was needed in to rest old and tired stereotypes and the people whose region it is and who Devon. prejudices and to win equality in Britain, populate it and drive it. By assertively 27. Mr Major had engaged with the Europe and in the World. This conviction, setting aside the past Mr Prescott set the regionalisation process, setting up 29. Disaggregation was to be followed by together with the clear economic results seal on the failure of his initiative to shape Government Offices, and he had a successful popular campaign to achieve derived from empowering Cornwall and the future before it had even started. acknowledged the particular geographical designation for Cornwall and the Isles of the Isles of Scilly as a region, sustain issues that affect governance and Scilly as a NUTS2 Region – a pre-requisite the Cornish case. It will not go away 25. John Major, a careful and sensitive investment in Cornwall, if only by to them being able to jointly apply via as long as there are people inhabiting man with a streak of political and establishing the ‘Far South West’ the Government for EU Structural Funds the Cornish peninsula, because the reforming steel in his make-up, restored branch-office of Government Office Objective 1 status. The closure of South environment shapes the culture, and the County of Rutland and fought through South West (GOSW) at Plymouth. This Crofty tin-mine, and the newly emerging the culture invokes the conviction that the break-up of British Rail for a ‘Great was an acknowledgement of a situation collective will to positively address the semi-autonomy is the only lasting road Western’ brand. Perhaps Mr Prescott which was, throughout the 1980s and parlous state of the Cornish economy and to successful citizenship and to making a mistook such things as bourgeois 90s, exercising Cornish minds because Cornish community life and infrastructure fruitful and fulfilling contribution to British sentiment and failed to examine his own Cornish people could see that the artificial combined, in 1997, to attract the attention life and prosperity. imagination to discover that there are ‘marriages’ forced on her by successive of the incoming Labour Government. things, sometimes labels, sometimes Governments, were counter-productive This was achieved through an inspired familiar structures, sometimes values – and damaging. The Major proposition campaign by Cornish Solidarity which that resonate with people at an emotional – ‘Devonwall’- was a step away from managed to ignite popular support for level. These resonances affect economic over-centralisation but proved to be a a series of actions that exuded serious and social life as much as they inspire dysfunctional compromise. ‘Devonwall intent combined with an attractively poetry or sculpture, or shape places or failed, thereby proving the Cornish case; positive and modern cultural message – posit change. the failure of the EU Structural Funds Kneehigh met the Stannary! Objective 5b programme, which was

11 31. It is incredible that the Government and RDA. This laid the foundations for failed to link its drive towards regional probably the most bitter and destructive devolution to the vivacity and identity division in the Cornish body-politic since During the War of the Five Nations, when Cornwall assembled a of Cornwall and the Isles of Scilly. It the War of Five Nations (Civil War) in the might have perceived that, if it wished 17th century. very successful army to fight for the Royalist cause, in the hope to see rekindled regional dynamism as a that it would win a constitutional settlement that would include means to stimulate provincial economic 34. The argument pitched two views of Cornwall in broader constructs but irrevocably seal Cornwall’s performance and, thereby, to relieve Cornwall against each other. The first, ‘difference’ as a ‘nation’, Parliamentary prejudices fed by a pressure on the rapidly over-heating South those of the indigenous community which East, then investing in regions that have has survived for thousands of years on hostile and prolonged propaganda campaign became deeply pride, identity, a spirit of self-help and a the understanding that Cornwall is both embedded in the ‘national’ psyche. Some people still claim strong sense of cohesion, like Cornwall itself and itself only, and is ‘different’ – that to perceive traces of the stereotypes and behaviour patterns and the Isles of Scilly, would be to provide difference being described in constitutional a beacon. In 2000, with Objective 1 – economic – cultural - religious terms lambasted and lampooned so long ago, which underpin less ‘in the bag’ the (then) Department of at different times, and fuelling various durable, more positive impressions developed when somebody Environment, Transport and the Regions forms of conflict, from military to legal and wanted something from Cornwall, such as the prowess of (DETR) launched its regionalisation project. liturgical, in each of the past six centuries. Cornish engineers during the nineteenth century. 32. During the 1997 election, which 35. Against the indigenous perspective had been county council as well as was now firmly pitched the external parliamentary, the very clear political view, propagated by people rhetorically mandate emanated from the electorate of burdened with illiberal concepts such as Cornwall – with very little, if any, dissent – ‘balkanisation’, over-egging the impact that Cornwall should be a region equipped of Cornish nationalism by linking it to 36. Historical profiles of Cornwall and the 38. Economic failure – following the with its own development agency – the neo-nazism rather than to the fine liberal Cornish have shifted from time to time, collapse of Cornish banking and the Cornish Regional Development Agency! principle of preserving and enriching especially as economic demands outside consequent loss of investment in new cultural diversity that characterises what Cornwall for Cornish products – wool in mining ventures, coupled with an inability 33. Only a very small band of zealots might be described as ‘celtic’ nationalism the Tudor period, tin and copper in the to meet competitive pressures from espoused Cornwall’s induction into a within the UK and the British Isles. Such 18th and 19th centuries, engineering and overseas suppliers of tin and copper, much larger (and previously discredited) assertions were founded on ignorance, skilled labour during the late 19th century the Cornish economy caved in. It has ‘south west’ regional construct, but either genuine or assumed, and emanated – have ebbed and flowed. struggled to re-develop, and has spent they asserted a significant political force from motives that are difficult to fathom. much time and effort propelling Cornwall during the early days of the new Council. Emanate they did, and have led to 37. The twentieth century was into the forefront of the British tourism Motions and resolutions were unhappily Cornwall being increasingly disabled characterised by two key phenomena trade. It is an international destination, manipulated at ‘county’ Hall and, much as perceptions of Cornwall within the that have affected external perceptions highly praised and a significant earner. against the will of the majority, in an government have become more and more of Cornwall - economic failure and It does not invest to any great extent in example of semi-covert political horse- confused and detached. population change skills and presents few if any challenges trading, Cornwall found itself unwillingly of the sort that Cornish people tend to part of a ‘partnership’ (the new word!) relish, such as engineering and design, set up to form a south west ‘assembly’ organisation and market-making.

13 A SIGNIFICANT FLUCTUATION IN POPULATION

39. Despite much opining to the contrary, to be faced, and very serious discussions 42. The underlying contracting trend of Council will disperse its activities, like the the farming and fishing industries about future economic and social the Cornish population has continued, Health Service, taking advantage of new have held their own despite significant strategies need to be undertaken between with many young people leaving in a technologies and meeting responsibilities reductions in labour and capacity, and Government and Cornwall. Climate constant stream in search of opportunity to reduce travel and carbon emissions. remain fundamental planks of Cornish change is a major propellant of this and fulfilment. For many of this group, the The effect upon Truro could well be productivity. Indeed, farming and food dialogue, with the Isles of Scilly critically incentive has been less a matter of not contrary to that envisaged by regional processing is of equivalent value (and threatened, and much of the economic wishing to remain in Cornwall, or even planners, who wish to see it increase in growing) to tourism in the modern infrastructure at risk due to increases in of not being able to find opportunities population and economic clout! Cornish economy. New world conditions sea level, changes in growing seasons, to develop, but rather the compelling offer significant opportunities to develop viable crops and the capacity of the place conviction of their parents and grand- 44. It would be complacent to suggest farming, both for food and fuel, and to to accommodate continuing population parents that ‘there’s nothing left for we!’ that the new migrants have not altered further develop associated processing growth. the culture and human environment activities5. The new Newquay airport, 43. In turn, this has left the opportunities of Cornwall. However, it would be an coupled with a more imaginative approach 41. The population growth has been which have arisen for the new migrants to overstatement to say that the ‘difference’ to retaining and developing Cornish ports entirely generated by migration. In its take up. By and large, this has not been of Cornwall has been eroded or destroyed (eg Hayle, Truro, Par, Fowey, Padstow, earliest, Edwardian manifestation, it such a painful process because the very by them. Indeed, the nature of Cornwall Penzance) could further stimulate was fostered mainly by wealthy, self- distinctive physical character of Cornwall challenges the individual, and if migrants sustainable growth, especially if related sufficient people. Through the 1960s dictates to a large extent how things can are to flourish then they need to adapt to the broadband infrastructure which (after Harold Wilson’s Government be done and where. The planning system, and to learn. Those who do not bend will be upgraded during the Convergence unleashed ‘overspill’ for a short period) introduced in 1947, has controlled some like Cornish reeds before the gale find Programme, and to knowledge transfer with connectivity, public services and of the worst excesses of zeal, so that themselves eager to move on ere long! opportunities from the Universities at property speculation all ‘improving’, the coastline remains relatively unspoilt, Population turnover is very high, whilst the Penryn and Falmouth. the trend has grown, attracting people and our town centres retain a good number of Cornish returners is growing. In seeking a safe environment to bring up degree of their inherited appearance very recent times, with the new university 40. By the 1930s Cornwall’s population children or to retire, employment (mostly and scale. Despite the best efforts of and new job opportunities deriving from was in danger of falling to about 300,000. in the public sector and services) and a developers and planners we have not the structural investments of Objective Post-war planning strategies highlighted ‘quality of life’. The impact has been that seen a dominant urban centre emerge 1, we are seeing a small but significant population growth as a key objective. Cornwall, starting from the base of being – not even Truro, where the population alteration in population structure and Unfortunately, the strategies have been the first place to experience collapse of a remains stubbornly modest, whilst much cultural identity as more young people more than successful, as post-war major industry of the industrial revolution, of the town’s perceived economic power choose to stay than go. developments in public health care and has seen deprivation and relative poverty derives from the imposed presence of personal mobility have made Cornwall increase, economic performance decline, major public sector facilities – Cornwall an attractive proposition for many more the environment become, in some ‘county’ Council, Treliske Hospital and people than the social or economic parts, ‘at risk’, until EU Structural Funds Carrick district council. The district infrastructure or environment can cope intervention was necessary to arrest council has disappeared, and the new with in a sustainable way. Big issues need fundamental economic failure.

5 This renewed demand for land-based production raises major questions about the demand for land generated by planned in-migration which has been sustained since the 1950s. The Cornish population has grown by about 70% since the end of World War 2. This population is critically reliant upon imported food and commodities. It might be argued that infrastructure needed to stimulate Cornish trade (ports in particular) competes for funding with infrastructure needed to service an unsustainably large population. The choices ahead, which need to be made soon to become effective during the next generation, are profound and difficult. Dialogue at a senior strategic level between Cornwall and the Centre is essential if such decisions are to be made.

15 GOVERNMENT

CORNISH ASSEMBLY

COUNCIL COUNCIL COUNCIL

20 x COMMUNITY NETWORKS

c220 PARISH & A REFINED TOWNNEW COUNCILS GOVERNANCE STRUCTURE

GOVERNMENT GOVERNMENT

CORNISH ASSEMBLY RDA - ‘REGIONAL ASSEMBLY’ - GOSW

COUNCIL COUNCIL COUNCIL UNITARY COUNCIL

20 x COMMUNITY NETWORKS DELIVERY AREA DELIVERY AREA DELIVERY AREA

20 x COMMUNITY c220 PARISH & NETWORKS TOWN COUNCILS

c220 PARISH & TOWN COUNCILS 45. This latter trend is positively affecting 46. When the dust settles and the new the strength of CornishGOVERNMENT identity, increasing unitary authority is clearly ‘in business’, demand for a Cornish orientation of the with elections held and new structural curriculum at all levels of education, arrangements bedding in, we will come to 47. As Cornwall settles down to its new 48. In the new structure the Unitary encouragingRDA increasing - ‘REGIONAL numbers ASSEMBLY’ of - GOSWsee that those structures provide Cornwall local governance structure it feels as if Council has 123 members, the Delivery children and young people to self-identify with the essential structural framework we have taken a significant step along a Area Boards will be management-led, the as Cornish, investing in activities, events, which, when the time comes, we will be bigger journey. That journey is towards Community Networks will be a member- symbols and creative outputs that are able to adapt so that Cornwall’s degree achieving a quality and standard of driven interface between Parishes and the UNITARY COUNCIL particularly and recognisably Cornish. of autonomous self-rule can be extended governance with enhanced autonomy Unitary Council. Parishes will retain their Nowhere is this more the case than in the and developed. whilst securing a greater voice and role local community context and functions, very rapid spread of interest in, facility with for Cornwall in the unified structures of the augmented and extended by arrangement andDELIVERY demand forAREA the CornishDELIVERY language. AREA DELIVERY AREA UK at a level which challenges Cornish with the Unitary as things develop. The Government finds itself in a tricky creativity and tenacity. In a sense it would position in relation to Cornwall, and it fulfil Cornwall’s sense of its own destiny, 49. It is not difficult to see, or to achieve is this which should offer20 xus COMMUNITY hope that and in another sense, it would open up when the time comes, a set of changes NETWORKS the Cornish Assembly can be achieved, to a natural British region the challenge to which would enable the Assembly to and also represents some challenges for develop methodologies and good practice be developed without any great change both Cornwall and the Government (of which will meet the needs of a society that in structure. A slimmed Council should whatever complexion) inc220 facing PARISH the future. & takes climate change seriously, is alert to become the Assembly, assuming a TOWN COUNCILS the emerging need to adjust to diminishing higher role; the Delivery Areas would be oil supplies, and which is making the democratised to become the delivery- most potent use of new technologies to driven local government of Cornwall, enhance life, prosperity and the global working with the Parishes to deliver environment – the epitome of ‘Think services. 17 Global, Act Local’! ISLES OF SCILLY

50. The Unitary Authority = about 40 52. With the exception of undertaking 54. The Isles of Scilly could be a partner 56. At the heart of such exciting concepts members; 3 elected unitary councils = an electoral review to create Assembly in this process (and would be welcome), lies the need to forge a strong, interactive 30 members each, accountable to the ‘constituencies’ and delivery council retaining its integrity as a distinct and creative relationship between the ‘over-arching’ assembly. In all there would wards, the degree of organisational constitutional entity, but gaining significant institutions of governance in Cornwall be 130 elected seats (+ Parish Councils). change could be kept minimal, because benefits from joint management, joint and the rapidly developing Combined The Assembly would interface directly with the structures and budgets would have working and joint purchasing. Certainly, Universities in Cornwall (CUC) and Government via specified, departmental been integrated and organised during the in terms of climate change, service University College, Falmouth. Both have contacts. It could be scrutinised by process of incremental development. support, infrastructure and economic the potential to share knowledge and a bespoke Parliamentary committee development, the relationship between intellectual assets with Cornish industry, including the 6 Cornish MPs. 53. The challenge for Cornwall lies in Cornwall and the Isles of Scilly has plenty in all its diversity, and to evolve new ways determining what it wants its Assembly to of scope to mature. This it should do, of fostering and developing traditional 51. Arrangements involving community do, and to then set about persuading the if only to evolve a proper and mutually and historic links. Therefore, one of the networks and parish councils would Government to enable it to undertake the responsive approach to settling how the earliest and most important institutional remain similar to those being established. tasks. This could be done as one major mainland and islands interact and work in developments to focus upon is to bring Unitary Council members would be drawn gathering of powers, functions and roles, partnership within the flux of a constantly together the universities and Cornwall from the divisions currently embraced by or collected incrementally according to changing external, global environment. Council and to begin to evolve projects the 3 Delivery Areas. Each Community priority, opportunity and evolving capacity. and thinking that can lead to productive Network Area could furnish two members It is possible that the Government might 55. Equally, Cornwall may enjoy the and innovative outcomes. to the Assembly. Such arrangements consider entering into an agreement opportunity to develop productive and would minimise electoral and structural based upon a coordinated and agreed innovative international partnerships with changes necessary to implement the development plan that resulted within a areas affected by Cornish heritage – for Assembly. The Assembly would not be period – say 10 years – in a reformed, instance, California, Mexico, Michigan a ‘local authority’. It would function in a comprehensive and cost-effective or Colorado, South Australia or South higher, more executive role, managing governance structure for all the public Africa. These might be initiated on the funds, establishing and monitoring service, strategy and policy considerations basis of shared heritage and mature, if policy, evolving strategy, advocating for Cornwall. opportunity and encouragement emerges, at key centres, promoting economic into evolving new economic ties and development and developing potential developing mutually beneficial markets new markets. This proposal is not a and exchanges. covert means of reinstituting a two-tier local government structure, but is rather a way of raising governance to a more meaningful level and greatly enhancing productivity and challenge.

19 THE FUTURE OF HEALTH SERVICES IN CORNWALL

57. Following this, and with a complex 59. Underlying these headline issues is the and patient process of consultation and perception, well researched and publicised knowledge-sharing undertaken, the by the Healthwatch Group, that Treliske is initial challenge will be to integrate health badly sited and causes the PCT to have to services and institutions in Cornwall into engage with three acute health providers the governance structure. The Department (Derriford, Devon & and Treliske of Health is looking at how it can devolve RCHT) to provide cover for all parts of responsibility in order to enhance Cornwall. This is expensive in terms of performance and to tailor services locally, duplication and also places patients along with reforming local accountabilities. and families under pressure because The present ‘strategic health authorities’ of distances that have to be travelled. are not working, certainly as far as Barnstaple is not overly accessible from Cornwall is concerned. The present say, Boscastle! infrastructure is elderly and very poorly located to meet the needs of the modern 60. It also means that resources cannot population, making best use of new be focused upon meeting higher level technologies and ensuring that standards needs which then have to be purchased of service are locally available. from further afield. The service is clumsy and places many Cornish citizens in 58. Cornwall has been in ‘dialogue’ an inequable situation in comparison (a polite way of putting it!) with the with people living in most other parts Government about its health services of the Country. It is also asserted by for the past decade, and has mounted Healthwatch, with strong corroborative a number of effective and increasingly evidence, that the infrastructural professional campaigns. Ministers, from inadequacies cause a chronic under- Frank Dobson onwards, have been funding of the NHS in Cornwall (HW challenged, and have altered their position compare Cornwall with Dumfries & on a number of occasions to ensure that Galloway), and that the ensuing ‘debt’ Cornish needs are met. Cottage Hospitals causes ongoing instability, constrained were saved. St Michaels Hospital and development and pressure to ‘centralise’ West Cornwall Hospital remain open. The critical services out of Cornwall. whole upper echelon of the professional health community (ie: consultants) have registered opposition to the removal of critical acute services from Treliske. Cornwall might be described as being in revolt over health services.

21 61. This is a classic case of centrally 63. The reforms include refocusing the 65. The benefits in terms of efficiency and 67. It would be necessary to develop a derived policies failing to adequately structural strategy for health provision for delivery will undoubtedly underpin the plan with the Government for downloading provide fairly apportioned services to a Cornwall and the Isles of Scilly. There is kind of social sustainability, together with regional powers and functions. peripheral region, causing inequity and a body of research, with strong popular a high degree of self-sufficiency that most poor performance. Treliske Hospital is now support (cf 30,000 march at Hayle 2006), observers agree will be what is required to 68. A Cornish Development Company under intense pressure, is constrained in that advances the view that, because ensure social standards as we enter into would provide an excellent vehicle to terms of future development, and will need the infrastructure is insufficient to enable serious management of the impacts of finally rationalise economic development to address the structural deficiencies of Cornwall to meet all its health provision climate change and reducing oil supplies. and to take on strategic functions and its key buildings before too much longer. requirements, the service is institutionally programme delivery. Indeed, with some Cornwall and the Isles of Scilly urgently under-funded. There is a long-term 66. A similar argument can be mounted expansion it could take these functions on need to consider their own conjoined need to re-position key facilities so that in relation to the Police. The current today. The template for such devolution strategic needs and to work with the Cornwall has two district general hospitals arrangements for populating the Police is already set out in the sub-national Government to develop resources that operated by the same Trust, and that Authority are unsatisfactory, especially review, and this element of development can re-provide infrastructure on a basis Treliske retunes its function to provide when it is remembered that an increasing should run concurrently with the forging compliant with Cornish geography, the high level acute interventions and develops portion of the cost of policing is derived of the institutional partnership between future needs of a place compelled by its training and qualification remit via from the Council Tax. Finding an elegant authorities and universities – so, early on. climate change and oil depletion to be Peninsula Medical School. means of promoting local accountability, more (not less) self-sufficient, and to whilst moving inexorably towards a 69. So too, could the Assembly govern public services to the highest 64. It makes no sense either in delivery ‘national’ police force, is a challenge develop scrutiny and accountability standard. terms or in cost-effectiveness for a Primary which Cornwall could easily offer to assist mechanisms to regionally oversee utility Care Trust to be commissioning acute in addressing. Again, the Unitary Authority contracts, transport franchises, Local 62. This is a moment when, with care from three separate providers (RCHT, could also embody the Police Authority. Area Agreements and Service Level confidence and a track record of being Derriford and Devon & Exeter), and finding Agreements with Government Agencies able to manage change well, Cornwall may itself in a position where it is increasingly (eg Highways; Boundary Commission). engage with the Government to persuade unable to meet higher level needs within it that its interest in devolving health the area of its operation. One of the key service governance to ‘sub-regions’ could truisms of governance is that, where it is and should start with Cornwall. there is a undertaken in a peripheral region, it needs clear demand for a much greater degree to over-provide and to tailor provision to BARRIERS TO PROGRESS of accountability and a more focused use achieve equality and performance and of resources to ensure that services are to respond positively to the geography 70. Cornish governance has grown parts of a dynamic geo-team, bonded by both high quality and accessible. There is of that region. Hence, the Healthwatch used to a deferential mode of operation, values, respectful of diversities, united in nothing to stop Cornwall from advancing analysis should not be judged in relation increasingly accepting templates and pro common pursuit of principles and policy the view that the Unitary Authority could to standard assumptions, but must be forma methodologies for implementing objectives which are less Government have its legal remit extended to embody a evaluated in relation to the geography of policy handed down from external policy than commonly held principles and new Sub-Regional Health Authority. This Cornwall. It is the particularity afforded by agencies; acquiescing in an hierarchical objectives towards which we all move would re-introduce a democratic element peripherality as well as by the distinctive assumption about the structure of in our own ways, open to challenge, into the governance which would go a environment giving rise to a readily Government that perceives regions and receptive to innovation and acting in a long way towards satisfying all those who identifiable and unique culture which drives local government areas as sub-divisions spirit of self-assertion tempered by a feel that accountability in the NHS is a very the Cornish case for devolution to an of the Centre, rather than as semi- strong sense of contributing to the greater complex and unsatisfactory affair in urgent Assembly. autonomous, vibrant and challenging whole. need of reform.

23 71. The deference and the concession to 73. So too, Cornwall has links and 74. The key barrier to achieving the fostering assimilation into ‘mainstream’, hierarchical authority present obstacles relationships with other European regions. Cornish Assembly is Cornwall itself – homogenous social, cultural and historical of perception for those who are willing It is to be applauded that, recently, if it cannot openly and freely form a narratives – if it dilutes rather than spices to be complacent and to perpetuate finally cemented its cohesive and open society, and if it will – then Cornwall’s case for a form of the ‘quiet life’. They do not, however, protocol with Finisterre. It is equally not equably support cultural development governance properly suited to both its reflect the agitation that constantly beats lamentable that the InterCeltic Watersports for Cornish as well as other activities geographical situation and to its deeply in parallel with the heart of the Cornish Festival was poorly funded when it came and forms, if it will not genuinely and felt and extensively and robustly argued people. The Unitary Authority claims that to Cornwall. It took an instruction from the enthusiastically celebrate Cornwall and case for devolution will falter. Self belief, it is acting in the interests of communities Government to make the Council wake assist its evolution, if it continues to focus individually and collectively, is everything in so harmonious, so bonded in common up to its responsibilities to the Cornish upon policies that may be interpreted as the game of winning deep change. purpose that Cornwall, according to language. Arts funding has resulted the hyperbole of, say, the Sustainable in the evolution of a vibrant ‘Creative Communities strategy 2009, is so close to Industries ‘sector worth over £250m Nirvana as to warrant getting off the bus per year. Cornish organisations and and walking the rest of the way. practitioners, although they define much CONSENSUS of what constitutes Cornwall’s identity and 72. It is a dangerous illusion easily ‘difference’ cannot obtain funding because 75. As stated elsewhere, what persuades 76. There is much to do. In Cornwall there succumbed to by bureaucrats and political Cornish culture is not within the ‘remit’ of Governments more than anything else is is a general consensus across significant institutions that efficiency in supplying the the public funding strategy – what is it that that an objective, no matter how radical portions of the political community that an daily round of services, good husbandry lies at the heart of Cornwall Council that or singular, is credible only if backed Assembly is an achievable ambition. In the of public resources and finding navigable leaves it espousing Cornwall’s ‘distinctive’ by a strong, well-evidenced consensus private sector there remains scepticism, ways to find grants to undertake ‘projects’ identity and then starving of cash and of support. The Cornish Constitutional and many organisations, particularly those is sufficient to win the willing support recognition those things and those people Convention has carefully brokered a in the voluntary sector, feel that essential of the communities they represent. who make up that identity? strong degree of consensus around the linkages with wider networks and parent- However, a region such as Cornwall has general concept of a Cornish Assembly. organisations might be at risk. a number of different dimensions and During the negotiations and consultations perspectives to its existence, all of which, prior to bidding for the unitary authority, 77. The Convention has constantly from time to time, need managing and it played an influential role in ensuring maintained a clear and incisive motivating – these range from fostering that the Government received the clear Parliamentary presence in both Houses. good environments to supporting spiritual message that the new Council is ‘a step This is due in great part to the leadership enquiry to building links with places along the way’. Amongst other things and selfless support of Andrew George around the World which are proud of the Convention brought together a MP. It is important in any future campaign their links to Cornwall and wish to sustain consultative meeting of the Principals of all that there is a strong agreement amongst and develop them – Pachuca in Mexico key public services in Cornwall in health, Cornish MPs and Peers around a single comes to mind, and the fact that there are further and higher education, Police and definition and timetable. Parliament is as many as 5 million people of Cornish local government and achieved a general where the case will be won or lost and descent in the USA. affirmation that the goal is worth aiming their commitment and persuasion will be for and, with the right external conditions, fundamental. is achievable and would repay the investment through establishing positive working and development environments.

25 CHANGE OF GOVERNMENT

78. There is a risk that a change of which to balance the generally accepted public both in and outside Cornwall. It has and maximise value. The Cornish fishing Government might jeapordise the desirability of evolving ‘City Regions’. also treated the demise of the ‘Prescott fleet is now one of the largest and campaign. To counter this there is a This latter issue is important because, Initiative’ as a liberation, not a failure! most efficient in Europe, whilst Cornish general consensus that, in terms of in moving towards ‘city regions’ the farmers are in the vanguard of efficient the economy, climate change, fuel and Government is faced with the question: 82. However, the economic climate has environmentally-friendly methods. energy, regulation, communication and ‘What will you do in places not dominated changed. Cornwall’s case must now rest safety that the increasingly global nature by a metropolitan centre?’ The Cornish upon the factors that can demonstrate 84. The foundations of the case for a of these activities dictates a consensus Assembly holds a key to the answer to that devolution will stimulate investment, Cornish Assembly must be that devolution amongst key political players in the central that challenge. productivity, innovation and wealth will empower economic development and ground. creation. In this it has had the infinite spearhead recovery by providing efficient, 80. There is always a risk of radical shifts luck to have developed structural assets responsive governance and public sector 79. It is also true that all main in policy, as much when Prime Ministers (universities, broadband connectivity, financial management. There is research Parliamentary Parties acknowledge the or Chancellors change within existing modern markets for modern activities – to be done in this area but the resources need to inject renewed dynamism into UK Governments, as when Governments eg software development, environmental exist to do it if the new Cornwall Council provincial economies in order to stimulate themselves change. It is vitally important engineering) which, it is widely perceived, gets behind the objective and utilises its productivity and to relieve pressure on the that the campaign continues to brief and will be at the forefront of recovery capacity to build the case. south East. The Cornish case is attractive to lobby Ministers and Shadows, as well strategies. for two reasons – firstly, because it seeks as back-bench opinion, and to ensure that to build upon significant regeneration Peers are also informed. It is always very 83. Also, Cornwall is a catalyst for creative success as a region achieved with important to set the tone of the campaign and environmental creativity, and has Objective 1 and, hopefully, Convergence. and to be consistent. Cheerfulness and a global reputation in some disciplines. Secondly, it offers a well-conceived, indefatigability are also important attributes These are assets to build on, and to deliverable non-metropolitan option with of the campaign. bolster traditional industries associated with food production such as farming, china clay and fishing. China clay has much potential to develop value-adding RECESSION AND GLOBAL CONDITIONS satellite activity around it to lessen costs

81. Clearly, economic conditions are attempt was made to impose regions as important in affecting the environment and a restructuring of centralised government, the rationale around important questions as in England, did it fail. Only Cornwall’s of policy. It is doubtful if the devolution has case stood out, because it has been project would have proceeded with the tenaciously communicated and has vigour that it did if economic conditions been constantly injected into the heart of were not positive, and if an economic Parliamentary debate, and because it not case was not made by recipients of only deploys a case for good governance devolution. It is equally clear that since of a peripheral region, but it is also devolution, whether it be to Scotland, founded upon an historical and cultural Wales, London or Northern Ireland, it narrative that clearly defines Cornwall and has stimulated significant change and the Isles of Scilly as a well-defined regional socio-economic progress. Only where the entity in the perceptions of the general

27 CONCLUSION

85. There is everything to gain from position as a wealth generator, innovator continuing the ‘change agenda’ in and trading catalyst. The question is Cornwall by setting the objective of simple: ‘Do we dare? And, if we do dare, forming the Cornish Assembly. It is gain then can we come together to achieve it? for the UK Government, in terms of And, if we can come together in Cornwall, more efficient public service delivery and then can Westminster and Whitehall rise much-improved economic performance. to the challenge of discarding old, deeply Reputationally, the central government embedded perceptions and looking stands to gain much prestige from afresh at how to promote cohesion being seen to be taking an enlightened and productivity through empowering and open approach to ensuring good ‘difference’ and releasing the energy of a governance in a difficult, peripheral region. potently creative community? The empowerment of Cornwall would create self-belief and purpose, which would inspire and ignite creativity and skills, leading to Cornwall regaining her

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